DEPARTMENT OF THE INTERIORBUREAU OF EDUCATION

BULLETIN, 1919, No. 13

REVIEW OF'6 EDUCATIONAL LEGISLATION

1917 and 1918

By

WILLIAM R. HOODDIVISION OF S( tinoL ADMINISTRATION

BUREAU OF EDUCATION

[Advance shear from the Biennial Survey of Educ.ttilnin the United States.. 1916 19181 .

WASHINGTON

Goyuiraturr PRINTING office1919

a.

ADDITIoNAL COPIESOP TIIIS 1* hE PN, KT, RI:I, FROM

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A

REVIEW OF rC-1TION.1L LEGISLATION, 1917 AND 1918.

By WILLIAM 11 HOOD.Division of -11 mini:0nd Ir,zu E 4rit'n f

CONTE vrv.The redern1 Government and eau...Mon: Vocational education ; Editintionfur the disabled soldier: dueationul institutions; soldierslti llircommon-school branette,i; Schools on Ioierninctit itnItist tin I tosetva thins ; Novniisfuration; Enlarged activities of the Department of tabor; Other agencies; I.:span-of the Bureau r t'ouord of National IhfetnuStatGeneral State administration ; County administration and, supervisiou ; The schooldistrict ; Consolidation ; Public sChool support ; Improvement of the teaching per-sonnl; I'..rtifiatiou of leaeherA ; The school Imo ; Compulsory wheel attendance;

souttation ; High *schoetls; Special classes for atypical ,1111t1t111: Civicand patriotic instruction ; ton of iltiiicm-y lam' lb, Americanization ofullens; Community urganiz,Lion in h. ; ; ; Higher1`1111C111011.

.Within the two years comprehended in this review the Congress

of the United States has been in almost continuous seAion, and all theStates, except Alabama. have held meetings of their legislativebodies. Six ..StafesGeorgia, Mawaellusetts, New Jersey, NewYork, Rhode Island, and South Orolinahold annual meetings oftheir legislatures. and these, of course, had legislative 'sessions bothin 1917 and in 1918. Within this period, special sessions wereheld in sonic States. Alabania,is nqt included in this review for thereaste that its legislaturr meets quadrennially and will not meetagairtuntil early in 1919:

The' legislation of an year, particularly an odd-nunthered year-I-vhen 4 or 43 legislatures Amin session. is invariably made up inlarge measure, with enactments relating to eilivtion, and this is nonethe less true of the two years here considered. Distinctly new editscationahnovements. however, have not been especially conspicuousin laws enacted. Progress in school legislation -has partaken ratherof the wstture of improingolder laws and moving along lines alreadywell defined. few elements have operated in legislatures with theprobable' effect. of distracting attention from' &lac:aloha] 'matters.The European war has been among these elements. The war andits concomitants have been uppermost in the' Minds of the peopleand in consequence have not gone without effect on State legislation.But it can'hardly-be said that this effect has been essentially hurtful.

-1

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4 BIENNIAL SURVEY 0 EDUCATION, 1916-1918.

On the contrary, as will app ar later in this chapter, some verywholesome educational measures have -received impetus from thewar spirit.

THE FEDERAL GOVERNMENT AND EDUCATION.

The Government- is more concerned with education than mostpeoule .,iippose. Of the 10 executive departments at Washington,at least S include bureaus or other agencies N.lticli touch. edu4cation vitally of some point. Among the more noteworthy of theseare the Bureau of Education and the Office of Indian Affairs ofthe Department of the Inferior, the Public Health Service of theDepartment of the Treasury. the States Relations Service of theDepartment of Agriculture, the Children's Bureau, and the Bureauof Naturalization Of the Departnient of Labor, and the grem train-ing branehes of the War and Navy Departments. In addition tothese. the Library of Congress, the Smithsonian InstitutiOn. the

Council of National Defense, the.Co'nonittei; on Public Information,and someother agencies serve an educational purpose not onlythrough tlieir broader information-giving activities, but thi.oughschool owlinds as well. The work of. all of these agencii.challenghsour attention afresh, now that the Government is extending its

.educational activities along other lines. .4

voc.vrtoNAf tan-i.'.vnos.. i

Prior to 1917 the Government had adopted and pursued severalwell-defined. policies with regard to -education. These are seen inthe consistent granting, upon the admission of each State, of hindsfrom the public domain for the endowment of the common schools:the provision of school facilities for dependent per/tiles such asIndians:. the encouragement of higher and teehnicinIducation by 4Ie enactment of the first Morrill Act of 1802 and

;eupplenientary acts: vpd the maintenance of extension work, partic-

:8, lir. Jn.191Z another And no lewimportant policy in 107"

ularly in agriculture, as provided in the "Smith-Lever Act . of:May

. -cation was- inaugurated. This took form in the so-called "Smith- 0Hughes Act," granting federal aid for vocational re!luctit ion.-

The ~math-Pughes Act-was approved by the Ptesident on Feb-ruary 213;1.1n7:.lt appropriates funds for the'purpose. of cooperat-ing with the States in providing instruction in agrieultural,lrade,home economies, and industrial subjects and in preparing teachersof vocational' branches of study. For the satariett-Of teachers, super-visors,- and directors of figricidtural subjects an initial appropria-tion of 000,000 was matte for the toil year ended June po, 1018,- .

EDUCATIONAL LEGISLATION. 5

and an annual -increment of 5327,0,000-is added until 0v fiscal year1924. after which:$.100,000 is added each rear until an :allowance of$ :3.000.000 is reached in the.iiscal year ending June 30, 1926. Thesesums are allotted to the State- in the proportion which the numberof their respective rural inhabitants hears to the total number ofrural inhabitants of the United States. For 11w salaries of teachersof trade, home economics, and industrial subjects appro1Wiat ions aremade in like manner and amounts. "riw stuns appropriatedfor thispurpose arc allotted to the States in the proportion which the num-ber of their respective urban inhabitants hears to the total number ofurban inhabitants of the I"nited States. The third appropriationwill reach $1,000,000 in the fiscal yetiiing June 30. 1925, and isintended for preparing teachers, t.tipervisorsigand directors of agri-en It ura 1 subjects und teacher,; of trade, indust tit'''. and home economicssubject:. The allotment of this fund is made on the basis-of totalpopulation.

The act creates a Fede;:d Board for Vocational thication. whichis composed of the S6eretaries of Agfeulture, Commerce, and Labor,the Coniiiis'sioner of Education, and. three citizens appointed by thePresident. Of the appointed numherA one mast be it representativeof manufacturing. and commercial interests; one, of agriculture;anti one, of Etbor. This board is chargedw,ith the administrationof the act and linty appoint such assistants as deemed neces.sary. Anannual appropriation of $.2(H 000 is made to defray the cost of ad-ministration and of such investigations and special studies4 flak).board may undertake.

In order to receive the benefits of the act any State must acceptits provisions and create or designate a board ttrcooperate with theFederal board. It is also required that the StatOor local authorities'therein, Or both, expend an amount equal 4o that expended in theState.by the Federal Government, and that plaits be adopted ftirvocational education which ate napptahle to:the Federal board. TheyState treasurer niust be 'designated by the legislature as die caste.'dian.of funds allotted under this act, and the State bpard musereport annually to the Federal board in 'Washington. The latteiisreqUired before the 14 day.of January io certify tc! theSecretary-of the Tivashry the amount to which each State is entitledand must report annually to eon ress,

As showing-something of the wration of this act. theJolloingbrief tableis given. It indicates )e innount allotted to each Statefor tjte fiscal year ending June 30, 1019,

6 BIENNIAL SURVEY OF EDUCAT1014, 1916-1918.

redral funds allotted to the eirecral ;Iittes for vocational education'AlabainaArizonaArkansasCalifornia

',Annul() . _ _ _Vanneet kat

$49, 705. 68.. 15, 1100.00

37, 874. -1258, 021.6.1

_ 10, 273.4331. 245. 91

NevadaNew HampshireNew JerseyN4WNew York.North Carolina

$15, 000.0015, 000.0062, 776.0715, 000.00

220, 343.51, 1111.2-110r

Delaware _ . _ _ _ 15. (SM. 00 North Dakota_ .__..___ 17. 808. 09Florida_ 18, 857. 53 Milo -- 115. 022.17Georgia GO. 944! S4 Oklahoma 38. 655.31111;1116_ 15. 1100 00 oregon 16, 142. 18

137. 581. 93 Pennsylvania _ 186. 780.00Indiana 64. 578.82 Rhode 19, 304. 07Iowa 52. 530. 24 South 1'arollii0 36.;,149. 30.Kansas 39, s07. 34 South I 17, 708.61Kentucky_ 5:1, 761. OS Tennessee. _ 51. 011.12

39, INS. 00 Texas _ 91, 301.8317, 92( 15, 9;10. 00

Alar) 31, 2:0. .... . 15.1100.011tlammelilisets S6. 138.70 Virginia -IS. 285.17Allehigan _ 67: 339. :15 \Vas]; _ 27.1314.44Minnesota . 49, 557. 88 West Virginia._ 29.417.10Mississippi -12, S8s. 92. \Viso); isin . 35. 843.72Nlissouri 78, 755. 0-1 Wyoming 13, 0, 00Montana 15, INN). IN)

2,307..400..44' ebraska 28. 014. 13 Total

EDUATIoN roll Dismti.rn sot.ntElt.

- Another. duty imposed on the Federal Board for Vocational Edu-cation. is that of providing vocational rehabilitation for persons dis-abled under. circumstances entitling them. after discharge from the...military or naval forces,of thellnited States, to conufensation under .

the war-risk insttran net of October (1. 1917. This duty is iii-posed by the ao-called Smith - Sears Acc.:0pproved June 27, 1018.4:Ender this act the Federal hoard is anthtltrhti to take the disabledman-When he isdischarged from the hoSpittil, or when the Armpmedical authorities 'permit. and give:him training as his needs re-(Ore, taking into account, of course, his personal preference andprevious.trainiug and aptitudes. The training provided is-designedto restore the man as far as posSible to full ditty again as a soldier inccvilian ranks. His instruction may take the. form either of furthercdpcittion or adjustment for.his prewar vocation or of -reeducationfor anew vocation in life. During the period of rehabilitation heis entitled under the law' to receive $65: or more per month, accord-ing to his circumstances. Allowances for dependents are also pro-.1,.1 n. th 1,. 11,n is,; .. . is vnitIM . 1,

ever, he ails or refnses to fellow the peescribM course of relmbilita-

Feder Board for Vocational Education. Second Annual Report. 191$, p. 100.

11117"'"EDUCATIONAL LEGISLATION". 7

tit ,ll which Ile has elected to follow, the Buret( t of Insur-mice may. on the recommendation of the board wi !timid his allow.-ance. The expenses connected with his instruction, including theco-t of hooks and supplies, are defrayed by the Federal board. Theb,:ard is given large dis'Jet ion in formulating plans. prescribingcourses of study and the like. The act appropriates and makes avail-able until,expended tla'stun of .1;.000.000 for the purpose of carry-ing out its provisions:

Sect ion G of the above- mentioned ;tt -also provideiThat tin medical and surAeal work or other treatment necessary to givetuaeunnal out mental restoration to Oh:Ailed perNons prior 10

Or naval forces .4 the Iolted Slates shall he ler the con-trol of the War Ihartment and, the Navy Deimrtinent, resiwejivoy.4It is further provided in this section- that, whenever training isemployed as a therapeutic measure by flie Irttr Depaqutent or Navy

Dcpart mem. a plan of cooperation way be estaldished bet %Teen theseagencies and the Federal board acting in an advisory -capacity, andtliat the War and Navy Department-.; my cooperate in a like capacityin the careof the health of the soldier or sailor,,after his dischargefrom the military or naval force'. This section thus takes legisla-tive cognizance of the work of rehabilitation establiN under thedirection of the Surgeon General of the Army. In the-last monthsof the year 1917 Sung. Gorgas organized in hisoffice a Division of 'Physical Reconstruction. This division seeks tosecure as far as possible the full functioning sigain,of the disadbleman's physical and Mental parts. Its methods, therefore, are. pri-marily Oierapeutic and look to restoration to'military duty, but the_man's return to civil life is not overlooked. Such instruction as isprovided is given prior to the mutt's discharge from service. Thework is ;Mpported from appropriations- for hospital and'other betihhwork ill the rmy.

Monnazd.sn Int:c.vrioNaL isirrrttnioxs.One of the first and ',Bost important. needs of the Army, afterArneria's entry into the war. w4s for additionalfacers; These

were prattled in reserve Akers' train-T/1g camps. A group of .olfieer, -candidates was asSelablicl at each of these camps and given inten -..si ve training for a period of about three months, at the end of whichsuccessful candidates were awaided,,commissiops, The first seriesof" camps was beguirin May 1917, at '13 points iii. dl tlerent parts. ofthe country.* Othertseries were held at intervals after that time.By May, ,1918. numerous educational institutions hail been madecenters of offiter trainjng. Men of 'as mulch previous training. a;possible were de ired; and naturally the ex-es-of the Nay Depart.:

8 BIENNIAL SUI1VEY OF OtIcATION, 1916-1918. rment wereturned for at large proportion of the officers needed tocollege graduates and stutilents. The maintenance of units of theReserve Olicers' Training Citrps at higher educational institutionswas authotzed by the " Sat ional Defense Art of June 3. 1916.

"iVith 31 Viet. to. 111011IliZIII!r the education:it institutions of thecountry and their facilities for special training." the".War' Depart-ment announced. on February 13, 191S. the, appointment of a eon.mittee on education and ,pecial training. This committee had. been

ell'aft,41 1,11."'days previously by oliel'a I Order No. I:). It was col-

poseu of Army officers. a101 an advisory. committee of educationalexperts was added. The Naomi, tee MIS charged ,,..a h I he sala.micioi.,of the St intents' truly Training Corr, vItieh comprised a collegiatesection anal it vorational 'tit ion. Units of the Students' Army Train-ing Corps were organized at over :110 edondiong in,iitiltions of theconnti .y... The collegiate section consisted of regidarly (aurolled vol-lege 'tuldents;'-Who. on appliration.and on meeting' the physical n. %

quirements, wtve given the status of enlisted men aunt left. sithjyct tocall, in training at their respective institutions. The courses wirearranged on ttic lmsis Of it three-months' term and were degigned.fortraining tooth otlicer-eatlithutes and technical experts. The WarDentytmet entered into contract with the institution for houoing,subsfstenee. and tuition of the men of both the collegiate and thovocational section. No promise was gislen that ittuili would be left

. in college for ay.stnted time.'but so long as I as not called, hisc.olleg,, was provided by the (Iovernment.. m ,.ere .,..

.however, the understanding that the call of the younger imp. wouldbe deferred longer than that of -omen of niaturer years.

The aim of the vocational section Was to i-rnin men for service an'tin& specialits in the Army.' They pursued such subjects as auto.driving, auto repairing, bench woodwork, sheet-metal worlt,eleeetriealwork. and the, like. As the 'courses were organized, they Were to begiven throngh a term of two months. lteFist rants who: had a grain-ntar-school education or equivalent trade experience Were eligible,for the vocational section: Induction was either by Call of the localdraft board, by application to the committee in Washington, or bytransfer from other units. : ..

In the last "draft law." approved August 31, ' 10 1 8,legialativesanction in the following langnage was given to the work as plannedby the Committee on I...:ducation and Special Training:

.....Si, . 7. That thoSeeretury Of War is outhorked to asAlim to elucational in-

stitutions, for sprat' and technical training, soldiers who enter the militaryservice under. the Irovi7dotis of this act In such numbers ant) under such rega-lotions its lie limy pruserlhe; and Is authorized to contract with such educa-tional hisilititionS fur the subsistence, quarters, and military and acadeieInstruction of such soldiers.

EDUCATIONAL LEGISLATION.

It mitst not be suppo,:ed that all war education was intrustedto .

the Committee on .Education and Special Training., On the con-trary, the eommittee:s activities. vere confined to educational insti-tutions. Outside of these. important educatiomd-forces were "carry-ing on." for the (Hike of the Surgeon General-, the Ordnance De-partment. the Qua rternno el.'s Department, the Chemieol Welfare;;rvice. the- Division of Military Aeronautics, the Signal Corps, theMiitor Transport Corps. and the Engineer Corps, all had means of .

training for their rcspective.intrposts..

TRAIN INO SoLDII:Us IN THE CoNI310N-SCII044: nyANctiEs.

An important branch of the Army educational- system was that.organized under General Order No. ri and designated "Developmentbatialioqs." These: were des'igned for lien who. because of reme-diable shortcomings, were at first unlit Tor-full military duty. The-A Emit might be either physi(cal or mental. In the latter event, theremedy was generally instructional in character. as where a man offoreign birth or parentage was unable to speak and understand the

lauguagi,, or where a native Ainerienn was illiterate. Theseiiattalions were organized at all eantonments, and many thousanis-of foreigners and illiterates were given as far Its practicable thenlents of itn English education.

SCHOOLS. ON COVEIZNAIENT iNntwrinAL nEsEnrATIONS.. .

In the spring of .1918 plan?, for the -establishment .and mainten-ance of schools for the children of workers employed. on Govern7-

'(Went- industrial %serrations where munitions rind accessories weremanufactured for the Army were formulated izt the oflieft bf tbe

. of Ordnance find were later apprmied the Third 'AssistantSecretary.Of War. By order of August 13,4918, the Chief of Ord-nanee directed that this COmmunity Organization Bransti of the A.litdiWrial Service Section, Production Division, be.,charged withthe organization and eontoil.of such schools. This,branch was ac-cordingly organized' in the. Ordnance Department, and 4. director

and an assistant director were Iiliteed' in charge.. School systemsha've been organized or projected on reservations at'or near the fol-lowing- places: Elmwood,. N. J.; Marys Landing, N. 3.; DelawareCity, Del.; Tullytown, Pa.; -Perryville,, Md.; .Charleston. W. Va.; .

Seven Pines, Va.; 'Penniman, Va.; Nashville,.Tenn.; Muscle Shoals,Ala.;- Shellield, Ala.; Brunswick, Ga. The schools are supported byallotment from 'Federal appropriations. Superintendents, princi-

end teachers are eniplo3ed under the direction of the .centraloffice in Washington.

107037°-10----1

BIENNIAL SURVEY OF EDUCATION, 1D16-14

NAVAL EDUCATION.

In a-manner similar, to that of tke Army, the Navy's educationalsystem has fiadergone great expansion hince the'. beginning of thewar. general. its- system oLtrainink in war time parallels thatof the Army. That is to say, men are -inducted into the service inPractically the same way and are giveksuelt preliminary and special.training as the needs.of the: Navvy and their previous edUcat ion Andaptitudes call for: Vy .agreement bet ween the War and NavyDepartments. the Navy %vas allotted.. under the -drall law of,:August 31..1918, :11)04 15,000 men per month. These received train-ing. as circumstances determincilt either in the " naval section ofthe Students Army Training Coriisat overlii0 educationaltntions or in the Various naval-training st t ionsrual camps theopgh-out the country. l'hey, as well is the men of the Army, are entitlit 'under the lit w to vocational reltiihilittitien in CISO in thedischarge of duly. Sin the 'outbreak of. the war, the number ofcadets at the Naval Aeadeniy at Annapolis his been greatly increasedby law.

ENIAHDED ArrIVITIES OF THE-DEPARTMENT OF LAMM.

When a stata-of \611 was declared betWeen the United State; andthe German tlovi;rmitent. the Department of Labor already include,'rritMn its activities several lines Of educational endeavor, part Wu-larlvi in- connection with the work o1 the Bureau of Nataralization-and 'th© Children's Bureau: and after the outbreak of -hostilit io4 it

.was found necessary .t enlarge the department's activities alon'evarious lineS, -including educational. Three notable agencies whitittench education and which have been organized within the lastbiennfuni are the Enq Service,,the Information anig:ducti7Lion Service, and the Training and Dilution Service. Each theseoffices is organizA as a barealtand has a director in charge. %.

The rnited States Employment Se?viee is an outgrowth of thogeneral powers conferred uponithe Department 01 Labor by Chaptsir144 Acts of Congress.of 1012-13, and of the more specitie,,powe%conferred- upon the division of information, of the department' bysection 30, chapter 10, Acts of -1914-171Inintigrat ion Aft). For the,fiscal year ending June 30, 11)19. Congress 'appropriated (SundryCivil Act of July 1, 1918), $5,500,000fu unnlJn tin ,,.:swrfttoPv nf 1 .nlu,r Alnrilne fen nrncnnf n lllll rirnnnIr In fnrniult onnhInformation and to under such 11,,sktanee In the employment. of nao earnersthrottglimit Ilw Caltod States as may be deemed necessary In the posectition ofthe war and to aid In the stambozlizalion of all wages pat(' by the Governwentof the United States-and Its agendas.

1

Ent'C.kTIONAL LEGISLATION. 11

Nrt of the vork of phi AN'orking Reservemill t lie collegiate sect io'n of the 1i-omen's on were organized. Iiithe sprinf, of 191s the Boy.' 1Vorkinr esere wadi 11161)ilized andtrained. as far as practicablto. to spool their aaii,)11,-; in the countryat farm trunk. Effort teas also lea(to to iloltie boys so t:olployedin -vacation sinte to return to .school theauttimn. In connectionwall the reserve a collegiate.secthm Wasti:lintaitied for the pur-pose of niottilizing- stinknts in -a .sititilar nurnner. One ofthe functions itf the \\*omen's I)ivision involves the placement ofwtatieti. particularly oollogewomea. in - 1 :itahie positiottA-

The Information and A :duration ,entire is educational in thatit is an information-giving bitreau. It -was organized as a separate

;ireney after the passage of the :4111114y .tct of July 1, 1915,which appropriated ..$.2,:0410 'in formation aitaedticat ion setw-ice." A iniilar appropriation -in the same art was t of $1,50,000for 't t i hit ion of labor." 1n Ava i it was haunt

_necessary to infiltrate unskilled 1:11,61. into :the intlustfies to do apart. of the work. usually simple Bruges -es. forum rlY done by thoAilled. worker. Prior to induction into such employinent- the ros-pective employ,c needs a short pe.iod of tr:;ining. This "trainingand dilution of Jabot." is the NVolli with which the oflicehere men-: Owed is,concertied.

In- conne(It ion- with (110 .two Oltler of ;11e-depttilinent whichare .in a measure concerned' with eilticatitaithere are 'two notable:,activi I ies of recent development. I iy act :of Jinn, 29. 1906, tho

it of Nit ttiralizitt tOtt was. cliztged, tinder the 'direction of thoSecretary of-Lam,. w.tat," all mutters elatterning the naturalization.of aliens." Under this .atithorization and in pursttaue Of a plan:forulated in Aprib.191 4; phi bUreatt aS during the last three years

.sought to obtain the cooneration of public school authorities through+' Out the country in the .\nierivitnization of Pro:Teetive citizeitS of for--

oign birth. It -furnishes thesi authoritie, the names and addressesof 'lei...lat.:Inks for izeitship anti pet it 'toners GU. nat uralizatiott forthe purpose of..1firinging tiny declarants and _petitioners under thoAmericaniiing inflitenee of the public. sclad, tna. by means of let-tors and othewi-se.' seeks to induce them and their wives to tako:olvant age of the schtxd, opport unities afforded them. It also pub-lishes and furnishes a manual for teachers and a textbook for theuse of pro-petivecitizons! Authority-Tor the provi:;:km of to *hooksis vihbodied in the Naturalization Act of May 9, 1918,

.

In addition to its other ditties the t'llildreifs Bureau was elargekwith the hforceinent of the act of September 1, 1916, entitled, "Anact to prevent interstate commerce in theoproducts of child laor,and for other purposes," and proceeded with the wcit of Carriingthe." act into ,effect .until it was declared unconsitt ut ional' by' de-.

. 12 BIENNIAL SURVEY OF EDUCATION, 1916-1918.

cisiun of the Supreme Court of the United .States rendered ,Jule 3,1918. This decision was conclusive, rendering the so-called -child-

.

labor laic wholly!invalid and inopsrative.

Oro En AGENCIES.

.

It is era the purpose of this re\'iew to enumerate and describe all,of -the. Government's edneationirl activities, no to treat exhaustivelyall those that have been undertaken within the past two years.There are, however, some other activities that merit notice here, es-pecially since they. arc the outgrowth of laws enactedithin the per-iod comp,rehend:d by this chapter. Among these are the training ofshipyard workers and seamen wide': the Shipping Board, the dis-semination of information and the promotion of a wholesome HD-

Ntiovl spirit by the Committee on Public Information, and the con-duct of propaganda for the conservation of food and fuel by theFocal Administration and the -Fuel Administration, respectively.From its organization the Shipping Board has sought to provideand to/rain as far as possible the workers necessary to build theships provided' forby the-shipping law, and to man these,ships.aftertheir entry into the marine service. In the planning .of courses.ofinstruction and the organization cf its training syst4on, the boardhas had the cooperation of the Federal Board for 'Vocational Ed-ucation. The other agencies mentioned, particularly the Committeeon Public Information and the Food Administration; have usedschool channels extensively for their respective purposeti.,

EXPANSION OF THE BUREAU .OF EDUCATION.

For some years Congress has from time to time increased the ap-propriations made for the Bureau of Education. During the pasttwo Years these increases have amounted to $36,760; exclusive ofallowances for work arnong the natives of Alaska. For the fiscalyear ending June 301919, the total appropriation,s.oclusive of thesum for Alaska, is $162,200: Increment's to appropriations alreadyprovided in. earlier Taws additions to ,the classified clerical .

-force and more funds for the payment: of traveling expenses: Forthe fiscal year 1918Ai te sum- allowed for the .investikation of ruraleducation and industrial education was increased from $35,000 to$45,000, and a part of thn latter sum was made available for schoolhygiene. .This appropriation was raised 0450,000 for the currentyear. During-411e same period the allowance for school and home.gardening was increased frnn $5,700 to $7,500. Wow lines of workWere authorized in 1918-19 by appropriations of $9,000 for tho

EIWCATIONAL LEGISLATION. 13

vestigation of elementary and seeondary:educat ion, including eveningschools, and the wider use of the schoolhouse in cities and towns."mid $4,A00 for the " invest igtit ion of k indergart educat ion." Thus,by increments to its annual allowances, and by new authorizations,the Bureau of Education is continually expanding, but them remainvarious lines of valid ctmleavor which it is not yet able'to undertake.

roc NCH. OF. N TION AI. DEFENSE.

The act making approiniations for the support of the Army'for the fiscal yetir ended June .30, 191i, approved August 29, 1916,provided fora Council of National Defense to consist cif the SI:ere-larks of War, Navy, Interior, Agriculture, Connnivcc, and Labor,and to have associated widi it an advisory e4anmis:zion, tti consist ofnot more than seven members, appointed by the President. Aniong

-other ditties the council is Charged under the act with the "coordina-Lion of industries and resources for the national security and wel-faro" and with thb 'creation of relations which will render possi7-k.ble in time of :need the immediate concentration anyiktutilization ofthe 'resources of the Nation." The council has accordingly sought;in various ways to Mobilize and coordinate America's resources,.in-chiding educational facilities. Among

__or h eganized by t council are We Committee on Engineering and Edu-cation, the Woman's Committee, the Committee on Lators and theState Councils Section,. All of which have done appreciable servicein collecting data and ohlainirtg the cooperation of the educationalforces of the country. The act Making appropriations for sundryCivil expenses of Government for.1 he fiscal year ending June 301019, approprintcs $409,000 for the :woik,of the council.

SitiTE LEGISLATION.

Since. there have been 53 regnlarsessions. of lety,islatures and a:number of specie sessions within the Inst. two years, the voltitheOfschool" legislation .enneted 'in that time has been very .large It isSafe to estimate thn number of bills enacted. into laws affecting edit-cation to have been more than 1,000. Whatever the exact numbermay be it is'obvionsly too large to permit extensive treatment ofevery net, or even of evert, important act, in, a hriefsurvey.of thekind attempted here. Moreover, brief digests and disc4sions oftheso acts are presented elsewhere in publications of the Bureauof Ednention. In this chapter the effort is made, to- consider themore signifiCant ettcatiOnal movements And to show theirprogressthrough the enactment-of lair, .

.14 BIENNIAL SURVEY OF EDUCATION, 1916-1:118.

GENERAL STATE ADMINISTRATION,

"The constant state.sof flux and change .pf statutory law is not soapparent in legislation affecting general State administration as it is

/in the details of the school system, or with the smaller units of school.control. There are, however, some recent laws affecting State depart-ments of education-and goneral State school policies that merit es-pecial notice. Among these arc acts relating to the organization and.powers of State boards of education and the powers and duties ofsuperintendents of public instruction and provisions for State com-missions for various purposes. An Illinois act of 1917 reorganizesthe civil administration of that State by creating nine administra-tit() departments. Among these is a " department of registrationand education." In addition to-the .director, there are created in thisdepartment the offices of assistant. director and superintendent ofregistration and education and a board to have control of the normalSchools. This board consists' of nine officers of the several -part-!ments, the director of registration and education, and the superin-tendent of public instruction. AU offices created by this act are 6110by appointment by the G ernor for terms of four years, unlessotherwise provided in' thitct. The department of registration andeducation succeceas to the powers and duties of the State board ofeducation. Among other duties it is charged with the conduct ofexaminations of applicants' for licenkea to prat:gee various pr.ofes:sions and vocations, and with investigations andAte dissemination ofinformation respecting the resources, zoology, botany, -entomology,

7 geology, and water supply ot-the State.An act of the legislature of Kansas (Ch. 297, Acts of 1917) pro.-

vides for the manogement of State institutions by a State board pfadministration. This hoard. consists lethree qualified electors ap-pointed by the governor with the cons MIE of the senate :.the governoris hiMself a member 'and chairman. The appointed members are toserve for terms of four years. Their salaries are $3,600 each, andtheir entire time mast be devoted to the 'duties of the board. Underthe provisions ofthis act, The board of dircetbrs of the several educa-tional, benevolent, penal and correctional institutions of the State are-abolished, and the State board of adminiVation succeeds to theirpowers and duties.

For some time there has In a distinct-tendency in this country toreplace ex-offieto boards,.. or boards made up wholly pr in largemeasure of incumbents of. other offices, with members chosen directlyfrom the people. Utah made a change in its State board' of .educh-tion in accordant tith this tendency in 1915, and in 1917 (Ch. 478)Wisconsin. did k !wise. In the latter the board formerly consistedof the governor, secretary of state, superintendent of public in-

t

EDUCATIONAL LEGISLATION. 15struction, one person appointed by the board of regents of the Stateuniversity, and one appointed by the regents of the normal schools.By the act of 1917 the board is constituted as follows: Governor,superintendent of public instruction, one member appointed by theregents of the university, one member appointed by the regents o5the normal schools, and five persons appointed by the governor withthe consent of the senate. The terms of the five appointed by thegovernor are five years and are overlapping, one member being ap-pointed each year. The board is charged with the management ofof the fiscal and business affairs of the educational agencies of theState.

The State board of .education of Wyoming, as at present consti-tuted, is a board in which the only ex-officio member is the superin-tendent of public instruction. This officer and six members ap-pointed by the governor compose, under chapter 120, Acts of 1917,the board of education of that State. The powers and duties of theboard are outlined as follows: To have general control and super-vision of time public schools, to fix standards for the courses of studyin elementary and high schools, to make rules for the certification ofteachers, to conduct educational investigations, to have general over-sight of vocational and other special schools receiving State aid, toadvise theitriistees of the university with respect. to the normal de-partment of that institution, to assume the powers and duties of theState board of. examiners of applicants for teachers' certificates.The board is also authbrized to appoint a commissioner of educa-tion who is made its executive officer. .

By an act of 1917 Tennessee, provide that at least three of the.pinemembers of its State board of education must be chosen froni- theminority political party.Another line along which legislatures have approached State ad-minikrative problems in recent. years is the creation of commissionsto make special studies and reports on educational conditions or par-ticular phases of education': The greater. number of. these eominis-tiOni.has been created for the purpose of making recommendations

.with regard to codifying the school laws and eliminating contradic-tions,. and inconsistencies. That such a efidifination is needed inmany States ir apparent to anyone! who, examines carefully thepamphlets of school laws published by State departments of educa-tion. Nor is this need unknown to State school administrativeofficers. In the preface to the" Georgia School Laws and Decisions,"publiShed 143that State's department of education, Superintendent,M. L. Brittalivtays:-.'Ilya reason of recent legislation many contradictions occur in the GeorgiaSchool laws. For this reason it has been thought wise to publish

16 BIENNIAL SURVEY OF EDUCATION, 1910 -1918.

[only) extracts of our more important and most necessary educational legis-lation until the right Is granted to arrange the laws changed, omit those prac-tically repealed, and to print a complete and thorough school code.

The legislature- of 1918 provided for sa commission to codify the,school laws of Georgia.

The Virginia Legislature of 1918 took a similar step and providedfor a " coMmission to study educational conditions in Virginia. and-elsewhere and to report to the next general assembly its fhidings,together with recommendations for a revision of the school laws andamendments to Article IX of the constitution."

In 1911 the legislatureit.kf Arizona, Delaware. and North Carolinaprovided for commissions to codify their school laws. The usualprovision in enactments of this character is for a commission to studyschool conditions in the State. end elsewhere and to make lo the next,'session of the legislature a report embodying recommendations asto legislation. There is, however, a difiVrenetS in the amounts ofmoney made 'available for the purposes of commissions.. This is im-portant, for the study should be thorough, 'and sufficient time andenergy should be devoted to the report and the draft of the proposedschool code to make them thoroughgoing.

Another sort of .commission created in 1917 was that provided byan act of the Michigan Legislature for the purpose of making investi-gations and submitting reports and recommendations with regard tochild welfare.

Except as already, indicated in tonnection with State boards, thechief' State' school officer, called .",sliptituznlent of public instruc-tion" in most States, has.been the subject o'f*only minor legislationwithilitthe past two years. This legislation:has concerneichiefly the .

manner of choosing State superintendents and their compensationand assistants. In Iowa, prior, to 1917, the superintendent was ap-

. pointed by the governor, bid the legislature of. that year (ch. 318).. repealed thisrprovision and provided instead for his election by the

qualified electors. A law of Nebraska enacted in the same legislative.'year. .(Ch, 37) providoSefor the nonpartisan nomination and electionof the superintendent of public instruction, county superintentlantsof schools, and regents of The State university. The State Idahohas had shire .1913.b.oth superintendent of public ,instruetton anda 'Sfitte, conrunissioner of education, the latter office havink been.created by statute in that year. lint since the office of superintendentwas provided for in the constitutIon, the effort to substitute acom.;.ruissinnei for a superintendent, involved. the amendment of the eoksti-Intim' so as to abolish. the latter position. Accordingly the necessary,am.enument was proposed bY the_ legislature. of 1917.' A new law of

C.

1M Ow November election, 1818, ibis amendment fatted of ratification.

EIM9KIONAL LEGISLAIONs 17Maryland enacted in 148 requires the State superintendent to be agraduate of a standard college.

.

Acts of Connecticut and Michigan passed in 1917 provide for auas)iistant secretary of the State board of education-and a deputy su-perintendent of public instruction, respectively. Theict of Michiganalso added two assistant superintendents. Enactments of Arizona andDelaware had the e'ffectof increasing the compensation of the'cliiefschool dicer of those States. South Dakota in the same year fixed bylaw the allowance for expenses of the State superintendent. Amongother duties the ace of director of State institutions, created inTer-moat by act of Mar 2.1917. includes the supervision and controlof the Vermont industrierM061 and the Vermont State School forFeeble-minded Children.

COUNTY ADMIND,TDATION AND sureavisw.For several years the county as a unit of school administration hasbeen much in the minds of educators, and the subject has been much

discussed both among school men aml in State legislatures. In gen-eral, it may be said that there are three schools of tai pght withregard to local units of school administration: First, there are thosewho favor the county as the upit aed in strop form; that is to say,tlitiy would submerge the district as constituted in matiy Statesand make the county as effectually a unit of school control and super-vision as the city generally is. A second group would have the" county unit" in modified form, leaving to each community a melts-vre of local autonomy ; and then there is the third group, which isaverse to abandoning the district system or township system, accord-ieg as one or the other of these two is preferred. Whatever may befinal outcome there is Without doubt a tisend toward the " County-unit " system at the present. time. In his book, "The- Rural Teacherand his Work," Dr. II. W. Foght classifies 19 States' .ns havingadopted, the county plan of organization and mentions a twentiethState: which permits i6 less-populous 'counties to adopt this plan byvote ofthe people. M between the advoCatel of what has been calledthe" pure county type" and those who prefer a modified form, resultsso far attained are indecisive. Dr. Foght clasSifies 10 States as be-longing to the " mixed or semicounty tYpe," though he himself wouldappear to fator the stronger organization.

.

Within the. biennium treated here, the most notable change tothe pun* system was that made in New Mexico in 1917. By actof the legislature (ch. 165) that State provided for a county boardI Alabarna, Arizona, California, Drianre. Florida. Ocardia, Kentucky, Louisiana, Mary-land, Mississippi, Now Mexico, North Carolina, Ohio, South Carolina, Tennessee, Texas,Utah, Virginia, and Washington.'Nebraska.

101037 °- 1O-- -S

18 -BIENNIAL SURVEY OF EDUCATION, 1916-1918.

of education of five members to consist of the county superintend-ent of schools and four qualified electors appointed by the districtjudge. This board is charged with 11w administration of -schoolsthroughout the county, excepting those in incorporated cities, towns,and villages. In general. this law of New Mexico may he regardedas representing the modified form of county administration. Inthe Matter of finances the State and' county funds are apportionedto school districts on the basis of the school census; mid additionalfunds may be provided by district taxation. The expenditure ofrurat funds. however, is administered by the county board. each-.ers are employed by the district hoard of directors with the ap- .

proval -of. the enmity board. All equipment and supplies for ruralschools, whenever possible, must be purchased by the county boardin 'quantities and at whblesale prices., Build school property isvested in the county board, and districts may- be changed, oonsoli-dated, or abolished by the saute authority. County superintendents,remain, as *formerly, officers elected by popular vote. Ithral high.schools, as -.veil as rural schools of elementary grade, are subject tothe control of the county board.

\o other changes of great importance were made in county admin-istration in 1917 or 1918. Ilowever, in North Carolina an ad ofthe former year provided that in counties where members of thecomity boardsof education. were elected by the. legislature candi-dates'forinembershii) in boards should be nominated at .the partyprimaries or conventions and that the legislature should ete'et mem;hers from the-nominations so made. IteiriVinryland act of 1918district school hititirds are authorized to reject assiagiunents of teachersto their_ respective'd'striets. but. the.connty superintendent is notrequired Ict make more. e nominations- for the same posi-tion. in adopting this provision laryland veered -back slightlytoward the "semieounty type."

Laws affecting.county superintendents of schools have Within the.past biennium gefrally taken the foriu of ppovisions for increasesin- salaries and for deputy- Or assistant superintendents. AnTongthe States which raised the salaries of their county superintendentswere Arizona, Colorado, Delaware. Kentucky. Penns,Ovaniti, andSouth Dakota.. Kansas and Minnesota provided increases in thelarger eottntie,. The payment of the expenses Of superintendentsWas provided for in Montana, Nebraska; atid New Jersey. Thelaw of the last mentioned.. as amended in 1918, provides. for thepayinentof the expenses of the superintendent, npetithe presentationof proper vouchers, but such expeuis must not exeeed S12:1 in any

. . .quarter year.. tteputy nr assistant superintendents were pro -vided foe in 1917. in Arizona. lowa.,Kansas. 'Montana, at NorthDakota. A South _Dakota act of the same year provided, r the

EDUCATIONAL LEGISLATION. 19nonpartisan election of superintendents. Kentucky, at the last ses-sion of its legislature (1918), repealed an older law which requiredan examination for certification for eligibility to the office of countyso,perintendent.. In lieu of this provision it is now proVided that'any person holding the degree of bachelor of arts in education,bachelor of science in education, an advanced certificate issued bythe University of Kentucky. or an advanced certificate issued by the

Ato,State normal school's shall be eligible to hold the office.

HE SCHOOL DISTRICT.

Perhaps the most notable. legislation under this head within thela4 two years was that enacted in New York in 1917. By the en-actment of chapters 328 and 7S6 that State revised and reorganizedits Whole system of lord school administration. The former actaffected villages and rural communities. and the latter concernedcity boards of education. The act affecting the smaller communitieslaid the effect of abolishing all school districts as units of school.administration and substituting therefor a larger unit, the town-ship. This art. however, wits repealed by chapter 199, Laws of1918. and the old district system was accordingly restored. Chapter7l7.6 was entitled "An act to amend threducation law, by providing.for a hoard of education in the several cities of the State." Underits provisions ncity formerly having nine members or a small num-ber on its board of education continueA to have the same number, butin all other cities. except New York and newly created municipali-ties. the number of members. is 4educed to nine. New York .City,which formerly had a board of .46 members,.now has only seen,and boards of newly created municipalities will have five members.Where formerly elected, boards-will be elected under this act, and

where formerly'appointed they will be appointed still. In general,this law leaves the functions of city administrative agencies sub-stantially as they were prior to its passage. ,Its effect, in the main,is to 'repeal numerous Special acts. and .to make more uniform theState's system of city school administration. In the legislatureof .1918 it escaped the fate, of the "township act," having been.changed only by minor amendments.

coxsourverms..

The movement 'for qonsolidated rural schools goes on without abate,ment ; in every legislative year it is the subject of extensive legisla-tion. Few now deny that, whejlever practicable, the one-room ruralschool must give place to a larger, better-equipped, and more thor-oughly graded seat of instruction. In States having county adminii-tration consolidation is easily effected through* the powers, of the

ON BIENNIAL SURVEY OF EDUCANN,..2916-1918.

county board of education. In New Eng hula end a .fow States else-where a method of. consolidation -subsists in the towittsltip system.Where the district- system prevails, laws specifically designed to.affect a union of two or more districts are necessary. In view of thisface one looks to States having the district system for new laws relat-ing to consolidation. and it is there that most .or them are found.However, practically all States now have laws on 'the' subject, andcurrent enactments aro generally of the nature of -amendments toexisting statutes. Among the States which have within t Ite_jasttwo years changed their consolidation laws art. Illinois. Iowa, Ken -

tucky, Michigan, Oklahoma, South Dakota, Indiana. Kansas, Mis-sissippi, and Wisconsin. In the first six of these the new enact-ments relate chiefly to the manner of consolidating, which is usuallyeffected by vote, of the people in the districts concerned. In Indi-ana., the transportation of pupils was the subject of legislation.There the township trustee is now requires to provide transpota-tion for all children who reside over miles, and for children be-tween G and l years of age who reside over 1 mile, front school.Kansas act authorizes contracts with parents or other custodians totransport their own children. Mississippi in 1015 authorized schooltrustees of independencts to provide transportation forchildren residing over 9 miles from school. A Wisconsin net of 1917prescribes conditions on Which State aid for transporting pupils willbe granted. 4

runm -scitoot, suremir.

Two phases of school financing are prominent in present-day regis-Intion. These are (1) air: general tendency to increase tax rates for .

school purposes and (9) the effort to shift the burden of school sup--port more front the local -coninittnifY to the larger units, State andcounty, or.otherwise to equalize educat lona', opportunities. It is not,.practicable nor desirable to outline here all- recent provisions of fundsfor public schools. There is scarcely a State which has not ainefidedwithin the past few years its law roviatug school revenue, and innearly all cases' increases-in taxes have been allowed. Among theStates which have made provision for such increases within the lastbiennium . are Arkansas, California; Delawijre, Florida, Idaho,Iowa, Kansas, Montana, Nebraska, New Jersey, North Carolina,

!Olilalloina, Oregon, South Carolina. TexaS, and Virginia. It isworthy of note that among these States' are some that provide forcounty taxation for educational porposk Thi Legislature of Flor-ida, for example. }imposed in 191 7 an innendmnt to the State con-stitutioni which is designed to require each county to levy. on all .

-taxable property. aterein a school tax of not less than 3 mills nor

liatiltcel by this voter:. at 016 Novemlwr ebcti,m,

EDUCATIONAL LEGISLATION. . 21more than 10 mills on the dollar. An Idaho statute enacted In thesalve year requires the board of \county commissioners to levy a taxTor general school purposes which shall be sufficient to raise a min-imum of $15 per capita of children of school age. An Oklahomaact providcs a county tax of 1 nil il on the dollar.

There is a souse in which the county-unit " propAganda, theiiedeney toward increasel State appropriations and taxation for ed-ucation. and the advocacy of Federal aid to the State school systems_ay all be regarded as parts of the Mlle effort. By this it is meantthat all have their roots in the recognition of the unaided local com-munity's inability to provide proper school facilities and of the.larevr unit's duty in the matter. That a larger proportion of theburden of school support will be taken from the school district andassumed by the State and countyand perhaps by the FederalGovernMent»ow seems certain ; the trend of legislation is without(huibt. in that direction. A State appropriation for rdral. schoolsmade in Texas in 1917 amounts to $1,000,000 per annum. 'Anamendment to the constitution proposed by the same legislaturewould provide a State- tax of 35 cents on the hundred' dollars.l. Byan net of the same. year, Delaware provided an annual appropriationof $.250,000, out of the proceeds of the State's income tax, " for,thebenefit of the public schools." The Legislature of New Mexico pro-vided for a State school tax of ene-half mill on the dollar.

Legislatures of 1918 were no less generous with State provisionof school funds. The Louisiana General Assembly proposed fiveamendments to the constitution,' all of whisk were designed tomake more stable. the State's systetn.of school support and, partic-ularly, to shift the burden more to the county and the State,.

increased from 10 to 14 cents on the hundred of property vain-ation the State tax levy and added $100,000 to its annual' appro.-priation for school pu'rpoSes. In the Georgia Legislature the annualappropriation was inereasedc$300,000, and, had the bill become alaw us it. passed the lower hors', the increase Would haVe .amountedto $1,000,000. Mvsachnsetts and 'Maryland also. showed tenilenciesto add to the State's share in school support. By an act of thrlegisWimp of the -formerState.aid is granted to high schools In townshaving fewer than .500 families and a comparatively low. averageof property lilaation.

What is popularly known as " State aid's is a common form ofState paticipatitin. in school.-nmintenance. This, in general, serves -two. purposes : is extended to theovealc district to enable it toprovidadeguate, or morn nearly adequate, common- school facilities;and (2) it is granted in sonic States to any district. to encourage it

li the %Ow,: at the,riocctni,er election, 11115.

22 BIENNIAL SURVEY OF EDUCATION', 1916.--1918.

tao provide desirable types of special instrudtion, such as agricultureand home economics. Among the States which have recently enactedState-aid laws, or amended those already ui force, are Connecticut,.

-Delaware, Missouri; Rhode 'Island, South Carolina, Utah, and Wis.'consin:

IMPIIOVEMIENT OF TILE TEM"! I NG PERSONNEL.

l?t der this head are included the several elements which-make forthe trevelopment of efficient instrtiction. Among these elements aroadequate training for the pripective teacher, higlier salaries alulbetter Opportunities in the teaMing profesion. more contentment andsecurity in employment, and better social conditions amid which theteacher may do his work. State laws looking to all these ends areto be found in recent acts of.legislatures. With fegard to the train-ing of teachers some noteworthy acts have been passed, within thepast year. or two.

A MaSsackusetts enactment of 1918 authorizes the. State board ofedeation to expend not exceeding t..-1,000 a year for the purpOse ofaiding pOpils in the State nominal schools.' In New York an act 84the same year standardizes the componsat ionof. the faculties of theState College for Teachers and the normal schools. Under the pro-visions of this act a salary schedule is-prescribed. The salaries. ofthe president and the dean of the college for teachers are fixed at$6,090 amp $4.500,, respectively, and the principal of each normalschool is to receive the.same.pafas that of the dean of the college.The compensation of the professors, assistact professors, instructors,and assistant iiistructors-In the college for leachers and of the heads

f departments; assistants in departnien4and critic and model'teachers in the normal schools begins at a prescribed minimum foreach class and proceeds by annual increments. to a maximum which

ris likewise prescribed. According to this schedule the maximum forprofessors in the college is $4,000, and for'the hedd of a departmentins normal school, $3,000. 1.n actirOed in -Nebraska in 1911, pro-

in the normtds of that State an "elementary course" and an"advanced course". for teachers Of rural schools. The Legislattieof Arkansas in the same year authorized the St:tte normal school toissue.special certificates to teachers of _rural schools-and to personscompletinfi the two-year course. in home economics. A. Washingtonact esttratshed.extension departMents in the normal schools of thatState: Increases iji funds for the maintenance of institutions for the.trainintOof teachers werelprovided in many States: -

Another type of teacher traininga type designed. &idly to pre-pare persons to teacu ittituat tomtit unt.t.sis Duna 10 II I

schools and now become widespread in the country. Twejity-five

rr

fEDUCATIONAL LEGISLATION.

States have laws pt,oviding for such training. .Among these are two,Montana and Wyoming, whose legislatures. made the provision in

. 1917. The usual law on this subject authorizes approved four -yearhigh -schools to offer training courses and to grunt diplomas uponwhich teacher' certificates of elem'entary grade may be issued with-out fmther examination. Those laws also'generally provide Stateaid fur the payment of instructors in the normal branches.

Teachers' salaries, a constant sii1;jeet of legislation, occnpied theattention of legislative assemblies it 191.7 And 1918, as well as thoseof' previous years. In fact, the ontbrealt of the war Ind consequentrive in wages elsewhere Made more acute the problem of retainingteachers in their. posit ions at prevailing rates of pay, and this condi-tion could hardly escape the attention of legislat The two usualbrut of salary legislation, provisions for increased fUnds for tuition

iipose: and minimum salary Jaws, were in evidence, Of the firstof these, note has already been made under the hrading "public-scbciol support.- Among the States which prescribed minimum

,qunounts that may bepaid toiteaelers or which amerided existingAct ntes on the subject were Massachusetts, Delaware,. Pennsylvania,Mar34and, Kentucky, and Wisconsin. The usual law of this char-acter pre-terthes a minimum monthly .,stipend for each grade ofteachers, particularly teachers of the elementary grades. Thus Pend--ylvania in 1917 (No. 5) provided that the hfilder of a provisional

.certificate shall receive not less limn 845 per month; the holder of aprofessional- or a normal 'school certificate, not. less Wan $55; andthe holder of a permanent certificate or final normal school diploma,not As than $60, The object of the mininiunt saltily law is twofold:

protects the teacher;especially,the.beginner,fiein the penuriousness

from going intothe maittot and buying. the cheapest pOssible tech,

of !twill school boards, and -it prevents the bargain-driving bool ifd

Mg. serite. In both asPeets it has atemleticy to klurrovo Tlic char-.:icier of instruction in the public schools.. Two kinds of laws tend to give the teacher a feelingof assuranceand ctintentmeni ,'. a desirable state of lad in a public servant sopoorly paid. These are popularly known a;. "tenure laws" and

pension laws. " Of the 'tonna there are as yet few on the statutehooks of the country, that of llassitellusetts bejng among the. morenotable, but iv:tllers' associai ions and like amides are continuallyfurthering, the. propaganda-, and legislattires are brought more andmore to con5dderation of the matter. It should not be the purposeof a -tenure law to make secure in his' or her position the inefficientteacher, lint it. is.desir'ablethat. the efficient teacher be relieved, after.a reasonable period. of 4irAal ion,. of the burden ofhaving to -standalninally for reelectionnd that 'on the Miool board should be placed

Imam_

24 IIII.XNIAL SURVEY' OF EUUCATIoN, 10'1G-4918..

the burden of showing cause why. any teacher's employment', afterthe period of probation, should be discontinued.

-Many laws providing for the retirement of superannuated tc:ic l ersare now in force. -Thirty-seven states have such laws applying to hewhole or some part of their areas. The most recent development in

,,this field of legislation is the effort- to put retirement systems on around actuarial basis.- l'he acts of Connecticut and Pennsylvania 'passed in 1917 are representative of thi- effort. .

Among the laws designed to improve the serial. envircinineni. ofthe teacher are those which provide for " (4stocs7.or other homes,,,

for teachers, part icularly!Pn rural sections of the country. A few --

States now niaNprovision for such cottages. Among these are Illi-.'nois, Tennessee, Louisiana, Texas. Nebraska. and Wa,shingt on. Themost recent addition 0) this giOup was Mississiptai,.-which in an act

..

of 1918 atitholized, independent scla61 districtM kik a tax for thoupurpose of erecting teachers' homes. The provisiMi of teachers'homes in onnectiOn. with schoolhouses would seem- to forecast thecoming of a rural-school plant which shall consist not merely of a,building for sheltering the pupils during the hours of instruction,,..but also of several acres of land. a dwelling. a barn, and other equip-

life and rural community purposes. .There is in;the country a well defined movement which is l'iorking to this mid.- .

zrAcurits.

Aside_ from the general tendency to raise the requireinepts of *qual-ification to teatli. there are two or three other aspects of teacher=certification which are worthy of note, Perhaps the most significant,

, feature of recent legislation relating to this subject is the large nunr-ber of provisions for special certili,.ates. These are of various kbuls,as for manual training, agriculturk industrial suhtectsi, househOldpconom,Y, physical training. kindergarten , and -tlasses. for specialtypes-of children. Many legislative arts if recent years have pro-vided for the ceification of instructors special branche;: Cali-fornia,. for example, amended its la i P117 (eh. 099) so as to-authorize county boards of education t.. issue special certificates toteachers of deaf and atypical child and of claSses in citizenship,oral expression, library craft, ninvrcial Spanish, and vocationalguidance. Household econo y is a subject which is proMinent inlaws pro for certifi,,tiola in special branches or classes. Thetendency won d 'seem t be to require' of full-time teachers in thisdepartment admiti> n frOin a standard high school and the comple-tion o vo-year coarse in bile economics. in addition thereto.Thus Michigan, by act of 1917, requires the completion -of a two-yearcourse in the subject, such course to t e completed in'the University,

UMW

EDUCATIONAL LEGISLATION. 25

of Michigan, any State normal 'school. any college incorporated underthe laws of the State% or any institution ipproved by the superin-tendent fpf public instruction.

The certification of kindergarten teachers is another subject. ofconsiderable legislation. Some States, in providing f4 the establish-ment andlThtintenance of kindergartens: include night, law -require-ments of teachers. Specialists this; branch of txhication hold thata kindergarten teacher should have -completed it itir-year course inhigh school and at least. a two-yea course in a training school, andthe ttlidency in legination appears to he working to this end.Main.. in 1917, provided that aokindergarten teacliVr must lurve com-pleted at least a, two-year course in kindergarten training andrrrcicidl a ttrtilivate or diploma from a training school approved bythe State superintendent of public schools.

Another signitit'a fa feature of recent certification laws is the pro-vision for accrediting approved college and iiniversity diplomas andteaches' credentials issued in other States. Most States now havelegal provisiotts of this character. Among the more recent laws onthe subject are those of North Carolina and Flori, enacted in:.1917, and that of Mississippi, enacted in 1918.

,aThE Srl MOT. TEM.

In Bulletin, 1916, No. 2; "Minimint School-term Regulatifts,"pubkislted by the Bureau of Eiltic:atiimt ivis shown that 44 States -had at that time established by law it "minimum term of from GOto 180 days'.scheoliiigTFZitelt organized School.district." ThelourStated named' as having no such legal proyision were Alabama,Georgia, Louisiana, and Rhode 'Aland. Since, in the first threevafthese, the county -unit, system of school administration prevails andcounty Wards of education are autlicierhed to distribute State andconics, funds, from which school support is largely derived, to localdistricts according to their respective needs, the requirement as toa minimum term 'there is not so essential as in some other. States.In Rhode Island, whi.c the public schOols are already generouslysupported, the average school term being ym ge r than that of anyother State, minimum-term regulation Auld appear to be un-necessary.

In riot of these- facts, minimum-term legislation .enacted withinthe last- two years must of necessity have partaken largely Atli°nature of amendments to older laws. There have been, however,some noteworthy enactments of this nature. 11,11i4 of1917, increased from seven to eight months the lengtlii of term re- .gnired of any district having between 20 and 75 persons of schoolago and fixed at not less than .that length the term for any other

2G BIENNIAL SURVEY OF EDUCATION, 1916-1918,

district when its school can be maintained on a tax of Li mills addedto .funds receivetrfrom the State. North Carolina in the same year pro-.vided for an annual county tax to aid districts in maintaining schoolfor not less than six months. Reference hasproviously been made to anincrease of $100.000 in (lie State appropriation for school purposesin Virginia. In order to secure the bet possible results from tho

increases provided in State funds, the legislature attached certainconditions to the distribution of the money accruing tinder the'appropriation act. One of these conditions is that, in order toreceive the benefits of this distribution, the. district must maintainits schools for an average of seven months in the year.

COIllti.KOHY SCHOOL ATTI:NDANCE.

The most significant attendance law enacted in this country withinthe last decade was that passed by the Legishture-of Mississippi in191S. Its significance lies in the fact that every one of the 48 Statesnow has it statute requiring attendance at school, for.Mississippi'senactment was the last of the series. All of the States are now coin-mitfed to the policof requirinLY children to attend school for someperiod of their lives and for all or FOBle part of the school term.Thtt problem is no longer one of securing initial legislation in Statesnot having attendance laws, hilt rather concerns the. extension of-theapplication of existing laws and otherwise making them moreeffective:

Rett'ehingthelitst of a series conduces to retrospection. The periodthrough which compulsory attendance was extending over 'the cenn-try" from the Atlantic to the Pacific and from the Great L'Aes tothe Gulf "was of GO years' duration. The brief table presentedbelow shows the years in which the several States enacted their itial laws on the_ subject :

.

.-, 'Dote of enrtelmrot Of con pulaory.atIondonec lairs.'

Massachusetts.New .kirkDistrict of ColumbinVermontNew HampshireMirliipinWashington

,ColutectlentNew M'xtcoNevaihir1:tomtsCalifornia

"Maine ..

New Jersey

.,

-r

AIS52- 1853

1881180718711571157115721572]873187418741875

' 1875

WyomingOhioWisconsinIthod0 IslandIllinoisDakotaMontana'Iliinesota'NebraskaIdahoColoradoOregonUtahPennsylvania

4 11

.

...

..

- 18761877

,81 879

185.1158318531833

-,,. 188,51837

_.1837., 1889"' 18811

13901895

, C. S. Bureau or Educaioa, Bulletin, 15o. 2, p; 10, revised to :t u ate.4

EDUCATIONAL LEGISLATION. 27Dote of enacimeut of -rompulsory oftendattre latcs,--Continued.

Kentucky 1890 Oklahoma 1907Indiana 1897 Virginia 1908West Virginia 1S9 Arkansas 1009Arizona 1899' Louisiana 1010Iowa 1902 South (arillina_ 1915.Maryland 190e Texas 1915Missouri 1995 Florida 1915Tennessee 1905 Alabama_ 1915Dtmlowarc 191.:7 lleorgla 1910North Carolina 1907 Mississippi 1918This table shows only one phase of compulsory attendancethetime.of its introduction into .each of tha.several States. Anotherand perhaps more important phase is its growth public favor after

embodiment in law. This can not be shown so graphically. Theusual course of the compulsory .attendance movement in a State isthrough its -embodiment. in law and on into a f)eriod of extension ofapplication and.the adoption-of mare effective Means of.enfo9cement.Thus North Carolina enacted its first. attendance' law in .1907, madeState wide its application in 1913, and extended the agelimits in 1917.The new law of Mississippi becomes applicable in it county or intdependent district 014 by an approving vote of the qualified eke-tors residing t in. It fixes the ago limits at 7 and 1-1-and requiresattendance foMleast 69days in each year. Other noteworthy atten--imee laws of 1918 were a Massachusetts act further regnlating the .maintenance of county truant schools,- a Kennicky act extending t41magistrates' and police courts' jurisdiction in eases arising under theattendance law, and a Virginia act making its requirements State wide

.in application. Important. laws were enaaed- 1917,by the legislatares of Arkansas, Connecticut, Miehigad, New York, Nohh Caro-lina, North Dakota, Rhode, Island, and Sonth Dakota. In Arkansas.the requirement, is extended .to the entire State; in' Conneeticut, aState "prosecuting agent "-is provided to enforce the:law; in Michi-gan, private and parochial schools are required to make reports; inNew York, the number of days of :required attendance each year isincreased frnm -160 to 180; in the other 'States mentioned the ago .fitqiits are extended in one way or another.

HEALTH AND SANITATTON.

Reference is. made elsewhere in this chapter to same wholesomeeffects of the war upon edtteational, legislation. Without. doubt theoutbreak of hostilities in Igurope and the accelerated propagandafor " preparedness" in this country gave strong impetus to physicaltraining in the public schools. This is evidenced by the passage ofthe laws of New York and Louisiana in 1916, and by file, adoptionearly in 1917 of provisions for physical training in all schOols

28 BIENNIAL StiliN;EY OF EDUCATION, 1910-1918.

for military training in high schools, or for bath, in Arizona, In-thana, Nevada, New Jersey, Oklahoma, and Oregon. Since theentry of the United States into the war, California, Delaware, Min hi-ran, -Rhode Island,4ind M.:ryland have enacted similar lairs. The

I Jaen of Maryland was passed dr 1918 (ch. 269). According to itsprovisions. physical training must be provided in all public schoolsand schools receivittg. State aid. The State hoard of education isauthorized and directed to regulate such training and to appoh.State supervisor of physical training and such assistants as may bodeemed nec,sss'ary. With respect to recent laws providing for mili-tary science and tactics in secondary schools, it may.. be noted thatin only two States. New York and Arizona. are the provisions mademandatory in relation to Iroth school authorities. and high-schoolstudents.- In New Jersey, the State board of education is authorizedto make the requirement that military training be given in the highschools. Without regard to Military training in high schools, thefollowing States now provide bylaw fOr physical-training in thecommon schools: California. Delaware. Illinois, Maryland, Nevada.New Jersey, New York, and Rhode Island. All of these, except IL-

L linois, which enacted its law in 1915, have made the provision withinthe last two years..

of school children, which had its begin-ning in San Antonio in 1590 and attained its earliest high tkegree.ofdevelopment in Boston in 1891, is now provided 'in some form inall States, thutigh there are still a few which have no specific law onthe subject.. Recent laws are concerned with the extension of thepractice and with the provision of kindred 'aCtivities. An act. ofthe New Ilanipshire Legislature of 1917 requires the school board ofeverY. city, uninti, special or town school district to submit to thequalified electcrS the question of providing medical inspection ofschools.- A Nevada net of the same year requires teachers,..ti»urrkoexamination of school children to ascertain if' they are defective asto sight or hearing, have diseased -teeth, or arc addicted to mouthbreathing.. North Carolina anti North Dakota provide fur medicalinspection by' county authorities. In Wi'sconsin teachers are nowrequired by law to send insanitary pupils home. Pennsylvania andRhode Island, under acts of 191.7, provide for the professional' treat-ment of certain pupilsthe. termer for those having defective eyes'or teeth and the latter for those having defective teeth. In 1918 NewJersey authorized the maintenance of dental clinics for indigentchildren, and Virginia authorized county boards of supervisors toapproprjate county funds for the purpose of providing medical in-spection of school children and for the employment of nurses to visitschools and homes.

The regulation of schoolhouse construction and the preventionof the common use of drinking cupsjend the like were likewi,so sub.

EDUCATIONAL LEGISLATION.

jects of legislation in 1017 and 1416. Vermont and Washington inthe former year enacted laws designed to protect school childrenfrom accidents caused by automobiles. Vermont now requires within200 feet'of a schoolhouse the sign, "Two hundred feet to a -school-house." In Washington the sign, " School, slow down," must beplaced within 100 yards of each school. A few States regulated theconstruction of fire escapes, and California and Arizona prohibitedthe common use of inking cups.

MOH SCHOOLS.

High-school laws enacted within the last two years concern chieflythe extension of secondary education. As seen in legislation. thisextension presents three noteworthy aspects: (1) The general ten-dency toward universal high-school education; (2) legislative recog-nition of the" junior high school "; and (3) provision for the " juniorcollege." The first of these is evidenced by the recent enactments ofa number of States. In 1917 s. Tew Hampshire, Michigan, Kansas,and Montana provided for the p meat of the tuition fees of pupilsof secondary grade whose home districts were not providing adequatefacilities for pupils of their attainments., In the first two of t4esethe tuition fees are paid by the district, in the latter two the.countybears the busrden of payment. In several other laws authority forthe establishment and maintenance of high schools is conferred. ATennessee act of the same year (chapter 96) reorganizes generallythe secondary' schools of that State. Under the provisions of thisact element ail, schools consist of the first eight grades, and highschools may be either two-syear, three-year, or four-year schools.The courses of study are prescribed by the State board of education.Without affecting four-year schools already ee,ablishe,d, the. county.high-school boards nifty establish a. sufficient number of two-year andthreeyear courses to meet the needs of,rural communities. A countytax of one -half Mill is authorized for the promotion of secondary .

'education. The county -court elects thi high-school board. An Illi-nois act of 1917' requires all that part of a county not in a 'schoolcorporation maintaining a four-year high school to. be organized as a." nonhigh-scliool district" for the purpose of levying a tax and pay-ing the tuition fees of high-school pupils residing therein.

The junior high school, which is now widespread in the country,has received specific legislative recognition in Vertnont, California,and Michigan. An nuin States specific legal provision for suchschool's is unnecessary, sin they may be provided underi authority ,

of existing law. 'Tho "junior e" is a later development in sec-ondary education. It consists usua y of an extension of the four-year course to include two

andyears, which correspond in

. general to the freshman and sgphomoro years in c011ege. Three. ..

tBet BIENNI U. SURVEY OF EDUCATION, 1916-1919. .

States, California, Kansas. and Michigan, made provision for juniorcolleges in 1917. The Kansas act (eh. 2:s3) provides for a two-year course in advance of the regular course approved by the Stateboard of education and applies to cities of the first anti second classes

. . and to county high schools. This extension, however, must have theapproval of the ottalified elector,,, voting,- at an election. -A tax of 2mills in a city or one-tenth mill in a county mag he levied to carryout the purpose of this :mi.

In 101b three. States enaeied important high- school MA:c4sa-

. chusetts granted Slate aid for secondary education in the. smallertowns; Maryland added to it, system a third 'class of high schools;and Virginia authorized. seleeds of two, three, or four rooms togive instruction in secondary st,bjects, if approved bI the Slate boardof education.

rect.r. .vrvettAr. clittinats.

More than three-fourths of the States noW Late institutions to-. which feeble-minded youth may he committed and given training

'suitable to their capacities.-and other States are, from time to time,.being added to this group. Thus Texas provided for a State "farm'colony" for the feeble-minded in 191:i, and .South Carolina madesimilar provision in.101. It would seem, Ihereforc, that atypical'children of the type commonly called "institutional :are soonto be provided for by law, lag the higher f..Trade:, of subnormality-,such as- pupils- retarded from -.one to three years in their studies,have receMd less legislative attention.. There are, however, .somesigns that provision for the-e higher grades may he .made in the near.future. Already special clas-es for-" baekwad children" are widely-Maintained, hilt this provision needs cheouragenient 'and direction.A few State,;, as New York, N Jen=ey. and Minneseta,male speciallegat provision for subnortfftItildren.

The New York law was enacted in .191T (e i. ,33). It directs the-board of education- of each city. Union free school district, or com-monrschoot distria to ascertain the number of children in-attendanceitpon the public schools therein. who are three years or more retarded-in mental. development and requires the board of each city otinionfree school. district in which there are 10 or more such children toestablish. special classes for them. Any school corporation havingfewer than 10 such children may contract for their instruction inanother city or district maintaining classes as provided by -this het.

-.An-amencinimit of 1018 Mithorikes boards to contract with approvedinstitution§ Ar lien of organizing. special classes. A Wisconsin actof 1917 authorizes city and village 'districts, With the approval ofthe State superintendent, to establish and maintain classes for."ek

1111M11111111111.11momir

EDUCATIdNAL LEGISLATION. 81

ceptional persons of school age." A State supervisor of such classesis provided for, and State aid is granted annually to the extent ofone-third of the salary of each teacher so employed, but not exceed-ing $300 of State funds may be paid to any one teacher.

CIVIC AND rArincrric INSTRUCTION.

The enactment of laws designed to provide instruction in patriotism afford another example of the impidse given to some kinds ofschool legislation by the European w, ,aws enacted for this pur-pose have generally ttt4cen the form o a requirement that patriotic

lielinstruction and exercises be incorporated in the school curriculumand. in the absence of an earlier law on the subject, provision for thedisplay of the United States flag on or near each schoolhouse. Nies"sachusetts and Minnesota, by acts of 1917, provided for training inthe duties of citizenship; and in the following year New. York andTexas made provision for patriotic. instruction. In New York anearlier law loft to the option of the local -school hoard the inclusionof patriotic lessons in the curriculum. The new law requires instruction in patriotism in all schools, both public and private. The TexaSlaw, enacted at a special-session of the legislature in 1918, requiresevery public school-teacher to devote at least 10 minutes each school'day to instruction designed to inculcate "intelligent patriotism."

About three-fourths of the States. now require the display of the-United States. flagon or near every public school building. By actof ,April 21.-1917, Florida required the display of the flag.on school-houses, and in 1918 Maryland and Texas enacted similar laws.Thera remain -10 States of the South which have no law on the sub-ject: but the recent enactments mentioned liere would semen indi-cate that all States may soon have legal provision for. the displayof the flag.

...,

THE ELIMINATION OF ILLITERACY AND TIIF. AMERICANIZATION OF ALIENS.

In some aspects the immigrant and.the illiterate:native present tothe American people the same .problem: Both are civically Unad-justed, both are in need of education more or less elementary incharacter, and in both CMS it is in large measure 'the adult whomakes the problem.. Still another likeness appears in the fact thatthe same kind of sehool, the evening' school, will either serve thepurpose of Americanizing the alien Jar afford instruction for theilliterate native.

Within the period comprehended by this review several Stateshave enacted laws looking to the Americanization of the-alien andthe elimination of illiteracy. The custom in some of the SouthernStatis of conducting "moonlight schools" and like activities for

82 . BIENNIAL SURVEY OF EDUCATION, 1916-191S,

the instruction of illiterate persons is growing. In a few States theseactivities are conducted under the direction of State "illiteracy coin -missions." In addition to those already established, commissions ofthis nature were created in Mississippi in 1916 and in Arkansas in1917. No State appropriation, however, was M rtrade in either case.This was in accord with past practice, for initial acts creating thesecommissions have generally carried no appropriation. the commis-sion being left to look to private benefaction for stif1Port. A seandstep in the procedure. however, has been reached. In 1917 NorthCarolina and in 1918 Kentucky, each appropriated $25,000 annually

dim,Ltlie- work of reducing illiteracy within their respective borders.4.-4 Thus the States are beginning to take nioie vigorous hold of the

problem.The legislature of New York in 1918 phssed three acts designed

to cure the malady of illiterate citizenship in that State. An act. known as the "Lockwood law "'authorizes the establishment of in-

stitutes in the normal schools and in cities for the purpose of train-ing teachers to give instruction to adult illiterates. A spoilt] act, -the "Robinson law,". requires attendance at 'either day or eveningschool of all persons between 16 and 21 years of age who do not pos-sess such ability to speak and write the English language &as is re-quired for coMpleting thework ohe fifth grade. of the elementaryschool. A third-act requires the maintenance of evening schools in.cities of the first, second, and third classes, and in union free schooldistricts under -certain prescribed Conditions. Tho legislature ofArizona, at a special session in 1918, provided for "night schools"in districts " where there are 15 or more persons over 16 years ofage who either do not read and write the ga' iglish language, or whodo not kale the English language." State aid is granted for thesupport of the schools providplfor in the Arizona act. A MiAsis-sippi 'act of the same year authozes any school district to levy alocal tax for the purpose of maintaining evening or part-time schools

. for "persons in need of such-instruction."Reverfing to the legislation of 1917, one finds that in that year

at least a dozen States enacted laws affecting evening schools. Colo-rado authorized. the .estnbli§lunent of public day and continuationschools, part-time schools, and evening classes for instruction in thearts and practices of trades and Vocations, and empowered the Stateboard f education to expend State funds therefor.' ..Under the pro.visions of an Iowa act any school district may establish eveningschools for persons over.10 years of tie, and is required to establishsuch a school whenever 10 or more persons entitled to attend desireinstruction therein in the common branches. Laws of California,Minnesota, and Tennessee Provided, respectively, for both day andevening classes for persons over 14 years of eget for evening schools.

EDUCATIONAL LEGISLATION. 33

for persons over 16, and for "night schools" for persons over 15.Nevada and North Dakota provided generally for evening schools.An act of New Mexico authorizes the directors of 'any school districtin hich-there are 10 or more illiterate or semi-illiterate persons to-employ the day-school teacher to give such persons instruction in

' the evenings. New Jersey now provides for the proportionate pay-plea of State funds for evening schools for foreign-born residentswhen the aggregate to which such,.schools arc entitled exceeds theStatetappropriation. The new law of South Carolina permits per-sons over 1 years of age to attend "public night schools." WestVirginia authorizes the establishment of evening schools for per-sons over the. compulsory- attendance age. Wisconsin increased tothree fourths mill the tax that may be levied in cities fOr industrialand continuation schools. From these laws at least one significantfact einerges: The older evening school conducted generally as an"opportunity school" for youth is now more extended in scope andfunction so as to include instruction for adults who are in need eirfmther eduention and civic adjustment.

COMMUNITY 011G.VNInTION 1N S11001.1101'SFS.

The propaglinda for the " wider use of the school plant" is nowmore than a decade old, the social and recreation centers of Rochester,N. V.. having attracted wide attention as early as 1907, but the eon-ceptionof this " wider use" has now .grown broader. "The. ultimateunit in every State, Territory, and posse.ssion of the United Statesis the school district. .Every school district should therefore be .ft

-little democracy, and the. schoolhouse should be the communitycapitol," says Dr. R. 1'. Clax-ton.' From this statement one gets theidea that every community is entitled to constitute itself a littledemocracy, centering in meetings at the schoolhouse. and conductingsnch legitimate neighborhoodactivities ns it litily-deem proper, andwithout doubt this is the trend of present -day thought on the sub-.ject. In on., not fewer than 14. States mode provision in one formor (mother for the use of the schoolhouse as a center of communityactivities-other than the: ordinary instruction given to pupils in the(lay schools.

. Laws permitting local school authorities to open *schoolhouses forrecreational and other .community pnrposes were enacted in 1917 inTown. Kansas, Michigan, Minnesota, Oklalionm, mid Utah. In theselaws the useof the sehoolhouse for stich purposes is loft to thediscretion of the school board; that is to any. the board is the finalauthority in determining whether-the school plant shall he so used.Many of the friends of the community-center movement would havelaws drawn in stronger form. -Them would have them require rho

I u. S. nureau of Education, BUlletio, 1018, 'No. 11, 6, 6.

34 BIENNIAL SUI1VEY OF 1:DucAIoN, 1916-1918.

sthool board to open the sehoolhouse for community activities whenrequested so to do by a sufficient- number of citizens. Several lawsenacted in 1917 were framed in accordance with this view. Thus,the Legislature"of \t Jersey changed from perinissive to manda-tory the law of that State. The district or. city board of ednett-tion ti Ie re is now required, -subject 1.0 reasimable yegulations tobe adopted b said board' or upon..notificat ion by the.commissionerof education,'' to permit the use of the schoolhouse for cimuanitypurposes. In NOW VOA, on petit ion of -25 citizens of any schooldistrict. or city. the district board of trustees or city board of -Mu-cation is now required to organize and ,!ondnet ionnunnity centersand civic forums and 'to provide finals for their support. Ohiolikewi,e requires school boards to permit such use of school ploperty.

An important feature of a well-organized community center 'IAthe 'provision for a "community secretary," or executive er, ofthe coguttunity organization. This which has already ap-peared in practice, is tui appearing in laws on the subject. Anexample is found in chapter -Sat of the New Ilampshire Acts Of 1917.This law authorizes cities and towns to equip and operate play-grounds and recreation centers and to employ "such play leaders,playground nistructors, supervisors, recreation secretary, or supein-tendent and other ollkials as it deems best." The school hoard maybe given charge of such activities, iu which case schoolhouse; may beused to curry out the purposes of the act.'

The act of Congress making appOpriations for the expenses ofthe government of the Dist rict of Columbia for thefiscal year endedJune' 30, 191S, provided " for the payment of neyessary expen-esconnected with the organization and conducting- of communityforums. and civic centers in school bnildits, including * *payment. of janitor service, serretnies, teachers, and organizers,* * * $5:000.'"fhis provision was continued in the apPropria-

1 tion act for the current year.A North Carolina' enactment of 1917 makes. it the duty. of the

State superintendent of public instruction to provide a series: ofen-tertainments, Varying in character,apd cost find-consisting of 'Motion'pictures, to be given in rural sehoolhon4ss. Onethird of the cost.ofthese entertainments is to be borne wby the Ste, and the other tzar-thirds must be provided by the ecru board of education or therural school community. An .ttnntial State appropriat ion of $.25,000is Made by this nit. An net of the South Dakota Legislature authors,izes school districts to levy tuxes for community-cente purpoes, anda Texas act permits the use of selidolbuildings for holding 616ctionS.

In 1918 Rhode Island, New Jersey, and Maryland made furtherprovision for the co entity use of the school plant. The first,two.ofthese authoyized the use of schoolhouses as polling places. Maryland

EDUCATIONAL LEGISLATION. $5I.

iirovidedfor community meetings and authorized the State superin-tendent to arrange for pictorial instruction in the schools.'

TExmooxs.Textbook laws passed within the past two years present no espe-cially distinctive features. Fr;-.e textbooks and State uniformity havebeen subjects of legislation for a number of years, anti the enact niahtsorm 7 and 1918 followed the .olde lines. Montana. which prior to1917 had -a permit+ing school districts tofurnish books free ttf costto public school pupils, amended its law .in that year so as to require

That book's be so furnished. Florida authorized the provision of freextbooks in t wo of its inure important counties. With regard to inn-tormity of textbook. one importa,nt law was enactedArkansas(act 110 changed i s system from /county uniformity to State uni-formit y.A phase of textl)ook regulation which has received considerableattention in recent years is the requirement that any person. firm, orcorporation -)tiering booksfor sale or exchange in the State must tilein the office' of the State superintendent samples of such books andlists of plices at which they shall be sold. Thirteen Staten7-Georgiii,Illinois, Indiana, Iowa. Michigan, Minnesota, Mississippi, Missouri,Nebraska. North Dakota, Ohio, Wisconsin, and Wyomingnow makesuch requirement, Illinois and Wisconsin having enacted laws to thatend ni 1917. In Georgia. Indiana; and Mississippi the requirement.a ppl ie. to hooks not subject to the uniform-textbook Laws. States whichdo not belong either to this group of so-called " States tn. inthe list of those previding for State or county nu iformity are Colo-rado. ('onnecticut, Maine, Massachusetts, New Hampshire, New Jer-sey, New York, Pennsylvania, Rhode. Island, and Vermont.

Some .months ago a study of State laws relating to libraries wasmade. in the Bureau of Education,'and It summary of those in forceJanuary 1, 1918;Was prepared. This summary disclosed the follow-ing facts respecting State provision of library facilities..; T.

Number having State libraries__. ,48Number having State commissions for the promotion of libraries 34Number buviug State traveling 111)1%1'0_ 33Number liming State legislative reference 11111.01mA. _L :inNumber having. State bistorical commissions (Wilda]) . 2.2.State aid to State ItiStorical societies r 30Number providing by law for county libraries_19Number providing for county traveling librarieq13Number providing for local public libraries45Number providing for public srbool libraries, , ,43State aid to public ilitrarles11.State aid to school libraries

. - 10

__.--..........----------:-------\yy

36 BIENNIAL SURVEY OF EDUCATION, 1916-1918.

Of the items enumerated in thist able perhaps the most prominentin the library legislation-of recent years are the provisions for legis-lative reference bureaus, county libraries, and school libraries. Itwill he observed that 30 States now make provision for legislativereference !means, whose essential function is to make comparativestudies of legislation. 'fills is a wholesome sign, for it shows a trenda way from the older haphazard manner of enacting laws and-towardthe practice of framing'snew legislation in the light. of the experienceof other States.

In l17. seven StatesIndiana, Michigan, North Carolina, Penn-sylvania. South Dakota, Texas, and West Virginiaauthorized thee:tablishment and maintenance of county public libraries. Whetherthis forecasts an extension of the county- library system to all partsof the country not already supplied with local community lilwariescan not now be-determined, but it unquestionably shows a very strongpresent tendency to provide library facilities in this way. limocounty system would seem a. thoroughly feasible system for rural:-ections of the Country.. A county library located at the county seat,

-.having branches at other centers of population, and sending outtraveling collections to every schoolhouse as a distributing .tation,.can be made to serve every Comnmnity in the county. .School li-braries., for which 93 States have made legal provision, have beenwidely extended in recent years, and rightly so. but. the cm my library

' can be made to correlate and largely increase the reading acilities ofthe people.

EDUCATION..

Perhaps the most, important recent legislation affecting hist it u-tioas of higher learning i that Which regulates the finances or sys-tents of support of State college and universities. the matter ofgeneral maintenance and current expenses,. there is a tendency bothto increase the amotmtS allowed amid to stabilize support by proiid-ing for tax levies to replace the older practice of making statutoryappropriations. Increasesin appropriations and tax levies as wellwere allowed Within the last tw6yenrs lit several States. Colorado in1017 provided for the State triv'ersity a levy of eight one-hundredthsof a mill in addition to the tiex already atlirized for that institution,and increased to the extent of three-tenths' o( a mill the tax for theconstruction and equipment of buildings for all of its institutions ofhigher learning. The Kansas Legislature of the same year Proposedan amendment. to the State constitution designed to authorize thelegislature to fix a tax rate for the support of .tbe*State educationalinstitutions. The Legislature of Washington fixed the levy for theuniversity of that State at seventy-four, one- hutl9yedthsof a mill. For

EDUCATIONAL LEGISLATION. 37the biennium ending June :39, 1919, Illinois appropriates $1,800,000In its university. and the fund for the nutinteance of the Universityof Ca lifornia is allowed to increase until the fiscal year 19.20 at- arate sufficient_ to make for each year aysum equal to 107 per rent orthesum for the preceding year

Provision of ftinqs for buildings and kindred outlays for higherinstitutions' was likewise prominent in. the legislation of 14)17. In:-ume case s. these funds WIT(' provided I,v 1)01111 .1S11('S, and in othersby tax levies,. North Carolina and Tennessee chose the funnier means.In North,Carolina issue not' to exceed :;:3000,000 in amount wasauthorized for the permanent enlargement autl itnproventent Oil theState's educational mud charitable institutions. and- Tennes-ev an I.issue of $1010.000 was allowed for the miiversity. Wyoming pro-vided. for the purpose ofpermanent buildings anal im.provements atits university. a State tax of one-eighth of a mill in addition to othertaxes and appropriati,ons.

.T111(; tendency to extend to a wider clientele tlw benefits of Stateinstitutions of higher learning is present in the legislative enactments,considered hero. as it has been in those of 'some fornter years,. Thisextension usually takes the fornt either of scholarships or of twirl,<ion of free limit ion for the-residents.o the State,. A Now Ilitinpshiro

appropriates $1:),000 annually to Dartmouth College. anddirects that -oat of this amolynt 10 scholarships he provided for resi-dents of the state. .' Virigina act of 1918 provides -119 scholar--diipsone from each of the school divisions of the Stateat the.-1"nivorsity of Virginia. TheSe. entitle their holders to. _hilt ion inthe college. Haub rent. light, heat,. andattendanee free of.charge."Where there is more- than one applicant. -in a school -division. thebenefiriary is to lie selected by competitive examination. .If the 7holdct: of Se1101:11Alip 11410611S St the university two years or more,he must after. Iva ying devote info school years to service its anaditten-istratrve officer or teacher in the school sYstent. A new Wisconsinlaw (1917) provides free tuition at .the university for students whoseparenis have resided ill the Slate one year or more; -and it Montanaact-authorizes refitilP,of . I raveling expanses. less $5. Of students inthe institutions of the University who areresidents'of thi State.

Thu -administration or :eonti.ol of State- higher ihstittititilis funsthe subject of legislation in :tfew shates in 1917 and 1918. Arizona4te?eated a commission oPthree metithes to devote their entire time.In the general control of the State. (Imitable. penal. and reformatoryinstitutions and: toth stlperyision of tlqi finanees of the University.,normal schools, Pioneer Historical -Society. State library, and legis-lative referenee library. Nevada amended its la so ns to reeon-stitute -the'lmard of regents of the university: this honed noW eon-sists of:live members, elected by vote of the people. North Carolina

38 BIENNIAL Srt;VE1 OF EDUCATION, 1D10-1618..

increased from S1 to 101 the number of trustees of the university orthat St:tte.,

In 1915 Massachusetts 1Wovitled for a department of universityextension under the control of the State board of education. TheState appropriation for this purpose for the fiscal year 1918 was$90,000. An act of the Legislature of Wisconsin passed.in 1917 au-thorized the regents of the State university to establish and main-tain a training school for pithli service.

The State of *Washington in 1917 (di: 10) !-ouglit to correlate as-tar as puctieable the courses; of 'instruction offered in its higherinstitutions and to eliminate tinnecessary duplication Of vorlt. Thisact prescribes the exchisive major lines" -which the courses at thetiuiveriI `hall embrace, atul like provision is nuole eith regard tothe,State agricultural college. Oluses permitted in either or bothinstitutions are likewise outlined in the act. Conrses in the Statenormal schools are to las prescribed by the State board of education,.lint within the limits indicated in the law. A `' joint board of highercurricula" composed of 'nine members is charged with the duty of

consideringenatters of.elliciencyiond co-Monty in the administrationof the foregoing institutions."